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USIS Washington File

04 November 1999

Text: Lessons Learned in Rwanda Genocide Must Be Implemented

(Scheffer remarks at Holocaust Memorial Museum) (3230)
The United States government "has learned much from mistakes" it and
the international community made which contributed to the tragic
genocide that occurred in Rwanda in 1994, but "I would be the last to
represent that we have developed a perfect response mechanism to
atrocities today," says Ambassador-at-Large for War Crimes Issues
David J. Scheffer.
"Indeed," Scheffer cautioned in an address before the Conference on
Atrocities Prevention and Response at the U.S. Holocaust Memorial
Museum October 29, "the purpose of this conference is to understand
how much still needs to be done to improve our collective abilities to
stop and prevent atrocities."
In reviewing and acknowledging lessons learned from the Rwanda
tragedy, Scheffer said, "We certainly now appreciate that high-level
attention to such calamities must begin much sooner, and that is one
of the reasons for the establishment of my own office in the State
Department and for the creation in December 1998 of the Atrocities
Prevention Inter-Agency Working Group."
Another "fundamental lesson" learned from the Rwandan genocide, he
said, is that "we cannot allow other policy priorities and breaking
events to distract us from the need to respond swiftly to the outbreak
of atrocities. Tough problems can be easily shunted aside by simply
pointing to another crisis that more desperately needs U.S.
engagement."
Other lessons made clear from the tragedy, he stressed, are to:
-- take seriously smaller-scale outbreaks of violence against specific
groups;
-- develop all-source data banks with immediate transmission of
information to governments;
-- don't let other priorities in foreign policy sideline the
atrocities priority;
-- accelerate decision-making in the U.N. Security Council on
multilateral military operations;
-- respond to humanitarian imperatives by constituting robust and
effective multilateral military operations;
-- address how to thwart the use of hate media to incite atrocities;
and
-- initiate fact-finding and criminal investigations as soon as
possible, but examine carefully the timing and scope of
accountability.
The challenge before the U.S. and international community now, he
said, is to "operationalize these lessons" learned in Rwanda to
prevent similar tragedies elsewhere in the future.
Following is the text of Scheffer's remarks as prepared for delivery:
(begin text)
Atrocities Prevention: Lessons from Rwanda
Speech at the Conference on Atrocities Prevention and Response
at the United States Holocaust Memorial Museum
October 29, 1999
By Ambassador-at-Large for War Crimes Issues
David J. Scheffer
Almost one year ago, I stood in this auditorium and delivered an
address on measures to prevent genocide and other atrocities. The
Holocaust Museum had convened a conference on "Genocide and Crimes
Against Humanity: Early Warning and Prevention," an important event
that foreshadowed what we are trying to accomplish at this conference
today.
It was December 10, 1998, and the President had just announced at the
White House the establishment of a genocide early warning system in
the U.S. Government. It was my job, here at the Holocaust Museum, to
explain that the core of the system will be the Atrocities Prevention
Interagency Working Group, which I have the honor to lead. The purpose
of the Atrocities Prevention IWG has been to strengthen our
capabilities to detect and analyze the warning signs of genocide and
other atrocities and to make recommendations for possible
countermeasures, including options that might prevent atrocities from
erupting or continuing. We are mandated to ensure that atrocities
prevention forms an integral part of our overall foreign policy, when
there is risk of an atrocities outbreak.
The Atrocities Prevention IWG began to meet last December shortly
after the president announced this project. The IWG has benefited from
an atrocities watch capability within the intelligence community that
seeks to monitor relevant indicators and predict the most vulnerable
societies. This includes the War Crimes and Atrocities Analysis
Division of the State Department's Bureau of Intelligence and
Research. During its first year of operation, the Atrocities
Prevention IWG has enabled our policy makers to understand better what
is occurring at the earliest possible stage and to be better prepared
to consider possible responses to stem the tide of killing. Some of
the countries we have closely examined are Sierra Leone (shortly after
I returned from a trip there in February 1999, right after the
Freetown massacres and mutilations), the Democratic Republic of the
Congo, Indonesia, Burundi, and the Sudan. We also have taken a hard
look at the diamond trade in Africa.
The IWG is not batting 1000 on its work product, to no one's surprise,
East Timor could serve as an example, and we will be examining for
some time the lessons learned from this particular tragedy.
It is the hope of the Atrocities Prevention IWG that we can begin to
work with other governments and the NGO community to ensure that
information on emerging atrocities is known as quickly as possible so
that effective collective responses can be more likely -- and rapid.
The non-governmental community has an important role to play in
keeping the U.S. and other Governments informed. We have benefited
from their experience and observations. The first-hand accounts we
heard from representatives of NGOs with people on the ground in East
Timor, for example, helped us to shape our response to that crisis.
Last year I spoke here about some important lessons drawn from our
experience with genocide. I want to repeat them for this audience:
-- We need to heed the warning signs of genocide and crimes against
humanity.
-- Officially-directed massacres of civilians of whatever numbers
cannot be tolerated, for the organizers of genocide and crimes against
humanity must not believe that more widespread killing will be
ignored.
-- "Neutrality" in the face of genocide and crimes against humanity is
unacceptable, and must never be used to cripple or delay our
collective response to these mega-crimes.
-- The international community must respond quickly to confront
genocide and crimes against humanity when they begin to unfold.
-- The consequences of genocide and crimes against humanity are not
only the horrific killings themselves, but the massive refugee flows,
economic collapse, and political divisions that tear asunder the
societies that fall victim to genocide. The international community
will pay a far higher price coping with the aftermath of genocide and
crimes against humanity than if it were prepared to defeat such crimes
in their earliest stages.
Rwanda 1994
Though I can only scratch the surface in my remarks this morning, I
want to try to address, from a forward-looking perspective, the U.S.
response to the genocide in Rwanda in 1994. The United States has been
strongly criticized for inaction in the face of the Rwandan genocide
of 1994. This trend commenced, ironically, with the very statements
acknowledging mistakes that the president and the secretary of state
made in 1997 and 1998.
In a speech in Addis Ababa on December 9, 1997, Secretary of State
Madeleine Albright acknowledged that, "We -- the international
community -- should have been more active in the early stages of the
atrocities in Rwanda in 1994, and called them what they were --
genocide." On March 25, 1998 -- during the first visit of a U.S.
President to Rwanda -- President Bill Clinton echoed the secretary's
remarks on the genocide:
"The international community, together with nations in Africa, must
bear its share of responsibility for this tragedy, as well. We did not
act quickly enough after the killing began. We should not have allowed
the refugee camps to become safe havens for the killers. We did not
immediately call these crimes by their rightful name: genocide."
The U.S. government was the first major Western government to admit
bluntly, at the highest level, that mistakes were made. We applied
common sense, our own knowledge of what had transpired, and the urgent
need to address this issue for the benefit of the victims. But let's
be fair: The people who participated in shaping the policy are very
well-intentioned officials who made some very difficult decisions in
an unprecedented crisis. We have learned much from those mistakes, but
I would be the last to represent that we have developed a perfect
response mechanism to atrocities today. Indeed, the purpose of this
conference is to understand how much still needs to be done to improve
our collective abilities to stop and prevent atrocities.
Conventional Responses Won't Do
We now know that violent humanitarian catastrophes may require
unconventional responses, out-of-the-box policy-making, and a more
determined effort to focus political will on the imperatives of human
survival. Atrocities, or the imminent unleashing of them, scream out
for immediate, imaginative, and bold actions. We have a motto in the
Office of War Crimes Issues at the State Department: "Timing is
everything." That motto is deeply embedded in our minds after years of
work demonstrating time and again that unless we act quickly enough to
try to head off or end mass killings and wanton destruction, the
opportunity is lost. The cost of mopping up will far exceed what would
have been required to face down the masters of the killing fields at
the earliest possible stage.
The Arusha peace accords had a tight schedule of implementation. But
deadlines were missed, prompting calls for speedier implementation.
All eyes turned on the how to salvage the peace accords, not on body
counts.
Indeed, perhaps the loudest warning signal that went unheeded was the
tens of thousands of Tutsis slaughtered in Burundi during a few short
weeks in the Fall of 1993. Occurring at the same time as the murder of
UN troops -- including 17 U.S. soldiers -- in Somalia, the Burundi
massacres barely registered in Washington. I have long suspected that
the international community's collective gasp of disbelief and
detachment from the reality unfolding in Burundi in the wake of the
massacres there must have sent a implicit signal to the extremist
Hutus in Rwanda that the shooting gallery was open, free of charge.
The killings in Somalia sent shock waves through the entire foreign
policy establishment. In the aftermath of the Somalia debacle, both
American and international political will to intervene in Africa was
evaporating, and the extremists in Rwanda may have suspected as much
as 1994 approached.
Violence increased in Rwanda in February 1994. There were several
political killings. Each such killing was followed by ethnic massacres
(at one point 100 Tutsis were killed). These were warning signs not
properly heeded. U.N. officials and foreign governments misinterpreted
the signs and assumed that once the Arusha peace accords were
implemented, the killing would stop.
Initial Response
By the end of March 1994, we knew the peace process was being poisoned
by the killings and that all efforts to pressure the parties in the
conflict to resolve their differences were faltering.
During this time, the Security Council emphasized that support for
UNAMIR, the U.N. peacekeeping force, depended on implementation of the
Arusha accords. The UNAMIR mandate's imminent termination was used as
leverage on the parties to seek a compromise. Such tactics were viewed
as a strong political signal that further delays would not be
acceptable.
The lesson learned from the pre-genocide period in Rwanda is that the
world focused on the peace accords and missed the real issue, ethnic
tension. The militias were getting stronger and more vocal. Newspapers
and radio talked about killing Tutsis and UNAMIR soldiers. Rallies
held by extremists often went unreported.
Once the genocide erupted, the United States and other governments
were seized with the imperative of evacuating their nationals. This
objective also dominated U.N. planning in the weeks ahead. Evacuation
is and will remain, for governments and the United Nations, the
standard response mode in life- threatening situations. The challenge,
however, is how to go immediately beyond the conventional policy of
evacuation and determine how also to address the underlying violence
that triggers the evacuation.
A Word About Process
The conventional decision-making procedures that unfolded in the
Security Council during April and May 1994 were ill-suited for
responding to genocide. With each passing day, an average of 8,000
Tutsis were killed (800,000 in 100 days). The inherent delays in
getting real action out of the Security Council bore no pragmatic
relationship to responding effectively to the genocide. By the time
the troops for UNAMIR could be pulled together, there would be few
Tutsis left to protect.
We certainly now appreciate that high-level attention to such
calamities must begin much sooner, and that is one of the reasons for
the establishment of my own office in the State Department and for the
creation in December 1998 of the Atrocities Prevention Inter-Agency
Working Group.
Use of the "G" Word
Much has been made of our non-use of the word "genocide" during April,
May, and part of June 1994 to describe the killings. In fact, the
United Nations refused to refer to "genocide" in connection with the
events in Rwanda and held to that position until June.
One of the canards of atrocities work is the obsessive interest of
some to immediately brand mass killings as "genocide," and to label
the U.S. Government as encouraging genocidal behavior when it delays
in the use of the term. We recognize that there is a need to make such
determinations sooner, but accurately. As I said last year on this
stage, we must pay more heed to "crimes against humanity" which can
describe a multitude of atrocities, without having to meet the high
standard of intent required for the crime of genocide. This game of
who pronounces "Genocide" first when atrocities commence is a
destructive one.
Then-U.S. Permanent Representative to the United Nations Madeleine
Albright pressed at the end of April for the first UN Human Rights
High Commissioner, Ayala, to visit Rwanda for a close look at the
situation. He undertook that trip within two weeks later and reported
back additional information of killings and destruction. It was his
first trip into an atrocity zone.
PDD-25
The Administration's work on a new peacekeeping policy for the U.S.
Government was coming to closure in April 1994 and guided U.S.
decision-making on the future of UNAMIR. As one of the staff authors
of PDD-25, the Presidential Decision Directive on Multilateral
Peacekeeping Operations, I was keenly aware of its use during the
Rwandan crisis. In addition to the advice being rendered by the U.N.
Secretariat, PDD-25 influenced our initial decision in mid-April to
seek a withdrawal of UNAMIR because of its inability to fulfill its
mandate. But the factors set forth in PDD-25 also influenced the
downsizing, rather than termination, of UNAMIR in late April and then
its increase to 5,500 troops in May.
Those who blame PDD-25 for placing too many constraints on U.S.
support for multilateral military action, and hence on confronting
atrocities, must bear in mind that the document is essential if
Congressional support is to be sustained for any U.N. peacekeeping
operations at all. PDD-25 imposes a discipline on decision-making for
U.N. peacekeeping and peace enforcement operations that has
considerable merit. One of the main factors weighed in a PDD-25
assessment is U.S. interests, including humanitarian interests. And in
the post-Rwanda environment, we are all more sensitive to humanitarian
crises and the extent to which they may affect the interests of the
United States and of the international community. PDD-25 is not a
straightjacket to deny justifiable interventions or preventive
measures when the lives of thousands of innocent civilians are at
stake. It is, and should continue to be, applied realistically, in
light of the circumstances that confront the international community
and the besieged civilian population at the time.
Information Flow
Following the closure of the U.S. embassy in Kigali, events in Rwanda
were monitored and analyzed from U.S. Embassies in the neighboring or
nearby countries of Burundi, Kenya, Tanzania, Uganda, and Zaire. With
the exception of a couple of trips to assess the humanitarian
situation, U.S. personnel did not enter Rwanda until July 6-7, after
the French-led Operation Turquoise had established a presence. The
reality of our work in government is that most of us engaged in work
pertinent to the unfolding violence are prohibited from visiting
violent situations. I am occasionally thwarted from visiting an area
of atrocities because our security regulations prohibit any U.S.
officials from being exposed to life-threatening situations. This was
especially true with Rwanda in the spring of 1994.
These facts may sound tedious, but we are accustomed -- and this is
critical -- to having our own people on the ground gathering and
reporting the facts. This simply was not the case during most of the
genocide that swept over Rwanda.
The lesson we have drawn from this, however, is to look to a whole
package of sources of information -- non-governmental organizations,
private sector sources, academics, open-source media, and other
governments -- that can be drawn upon during life-threatening crises
and more generally. We also have begun to contact refugees who would
have eye witness accounts that may prove beneficial to piecing
together what is happening. During the Kosovo crisis this year, we
deployed to the Macedonian border to interview the very first waves of
refugees. This gave us access to an enormous amount of valuable
information about the crimes being committed inside Kosovo.
Hate Radio
Another critical component to the Rwandan genocide was the use of hate
radio to stir up anti-Tutsi anger among the Rwandan population. We
need to explore ways to better address how we can shut down such
incitement machines.
Competing Priorities
A fundamental lesson we learned from the Rwandan genocide is that we
cannot allow other policy priorities and breaking events to distract
us from the need to respond swiftly to the outbreak of atrocities.
Tough problems can be easily shunted aside by simply pointing to
another crisis that more desperately needs U.S. engagement.
Further Lessons
In closing, I submit for your consideration a checklist of lessons
learned from our experience with atrocities prevention. The challenge
before us is how to operationalize these lessons:
-- Take seriously smaller-scale outbreaks of violence against specific
groups.
-- Develop all-source data banks with immediate transmission of
information to governments.
-- Walk and chew gum at the same time, i.e., don't let other
priorities in foreign policy side-line the atrocities priority.
-- Accelerate decision-making in the U.N. Security Council on
multilateral military operations.
-- Respond to humanitarian imperatives by constituting robust and
effective multilateral military operations.
-- Address how to thwart the use of hate media to incite atrocities.
-- Initiate fact-finding and criminal investigations as soon as
possible, but examine carefully the timing and scope of
accountability.
Conclusion
Recently I visited another massacre site a great distance from here. I
have seen more than I wish to remember sometimes. As I was walking
near one mass grave, the hard-driving rain forced up a human tooth
which stubbed my boot. I stopped and reflected on whose tooth I had
just stumbled across. I am weary of coming across the dead. While
accountability remains a central concern, we also must do more to
prevent this kind of slaughter. That is the purpose of this conference
and the work that must follow it. We must do better at prevention, so
that such killing fields do not become a permanent feature of the 21st
century as they have during the 20th century.
(end text)
(Distributed by the Office of International Information Programs, U.S.
Department of State)



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